ethekwini Municipality AQMP Review and Update: AQMP goals and Implementation Plan

Transcription

1 ethekwini Municipality AQMP Review and Update: AQMP goals and Implementation Plan umn i ethekwini Municipality

2 ethekwini Municipality AQMP Review and Update AQMP Goals and Implementation Plan Report details: Client: Report title: Report number: Project number: Project: ethekwini Municipality ethekwini Municipality AQMP Review and Update: AQMP Goals and Implementation Plan umn umn ethekwini Municipality AQMP Review and Update Version: Draft (30 September 2015) Authors: Mark Zunckel and Sarisha Perumal This report has been produced for ethekwini Municipality by umoya-nilu Consulting (Pty) Ltd. The intellectual property contained in this report remains vested in umoya-nilu Consulting (Pty) Ltd. No part of the report may be reproduced in any manner without written permission from umoya-nilu Consulting (Pty) Ltd and ethekwini Municipality. When used in a reference, this document should be cited as follows: umoya-nilu (2015): ethekwini Municipality AQMP Review and Update: AQMP Goals and Implementation Plan, Report Number umn088-15, 18 November 2015, Draft. ii

3 ethekwini Municipality AQMP Review and Update AQMP Goals and Implementation Plan EXECUTIVE SUMMARY ethekwini Municipality developed and implemented its first Air Quality Management Plan (AQMP) in In terms of good practice, the review of an AQMP is promoted through the National Framework for Air Quality Management and the Department of Environmental Affairs Manual for Air Quality Management Planning. ethekwini Municipality is therefore embarking on a project to assess, evaluate, review, and update their AQMP. This 18 month project consists of four major components. These are: i) the facilitation of the public participation process, ii) the review of the 2007 AQMP document and implementation thereof, iii) the description of the current state of air quality in the ethekwini Municipality and the identification of gaps, issues and challenges for air quality management and iv) the development of the AQMP document and the supporting implementation plan. This document focuses on the AQMP and includes the implementation plan to achieve it s the overall objective, i.e.: ethekwini Municipality manages ambient air quality to protect human and environmental health within a framework of sustainable development The eight goals of the AQMP are: Goal 1: Ambient air quality is compliant with the NAAQS in ethekwini Municipality, focuses on appropriate interventions to achieve compliance with the NAAQS in areas where exceedances occur and to maintain the air quality status quo elsewhere. These interventions consider the principles of sustainable development and aim to answer questions on air pollution and impacts in ethekwini Municipality, by proactively managing air quality in light of current activities and proposed development projects. Goal 2: The AQMP is incorporated municipal policy and planning, recognises that the AQMP needs to be integrated into related municipal policy and in planning mechanisms such as the Integrated Development Plan to realise buy-in, support and implementation success. Goal 3: Municipal structure facilitates the implementation of the AQMP, recognises that the municipal structure and the structure of the PCRM unit, as well as roles, responsibilities and lines of communication need to be clearly defined for successful implementation of the AQMP. Goal 4: ethekwini Municipality has the necessary skills to implement the AQMP, refers to the skills needed by incumbent staff to perform their mandated functions and addresses career development through training and other mechanisms. iii

4 ethekwini Municipality AQMP Review and Update AQMP Goals and Implementation Plan Goal 5: ethekwini Municipality has the necessary incentives to implement the AQMP, concerns funding for implementation and incentivising staff through motivational policies at an organisational and individual level through the provision of career growth opportunities to achieve the overall objective of the AQMP. Goal 6: ethekwini Municipality has the necessary systems and tools to implement the AQMP, aiming to enhance existing systems and tools and to develop others where necessary to achieve the overall objective of the AQMP. Included are emission inventories, ambient monitoring, dispersion modelling, information management, compliance and enforcement and complaints management. Goal 7: AQM in ethekwini Municipality is supported by participatory decision making, acknowledging that AQM is an interdisciplinary field which is dependent on relationships within the municipality, other spheres of government, civil society, industry, Non-Governmental Organisations, academia and other stakeholders. Goal 8: AQM in ethekwini Municipality is open and transparent, aiming to update stakeholders on progress with AQMP implementation, to improve communication amongst stakeholders, and improve general understanding of air quality in the municipality. The realisation of the Overall Objective of ethekwini s AQMP over its 5-year lifespan is guided by the Implementation Plan. The Implementation Plan addresses each Goal by defining outcomes-based Objectives and the Activities necessary to achieve the objectives. It is structured to provide strategic and structured input to the annual business planning of executing departments in ethekwini Municipality and of other stakeholders. For the implementation of the AQMP, each goal is addressed through out-comes based objectives that focus on specific aspects of each goal. In turn, the objectives are addressed through defined activities needed to realise the objective with defined timelines. Air quality management is a mandated function of ethekwini Municipality s Health Unit s Pollution Control and Risk Management (PCRM). However, air quality management involves a wide range of stakeholders and implementation of the AQMP and realising its Overall Objective depends primarily on PCRM and the participation of other role players, including other municipal departments and external role players. Indicators are designed to be easily interpreted and focus on outcomes and offer a means of measuring progress with implementation and reporting on progress. They are fundamental in monitoring progress with the implementation of the AQMP, in the evaluation of the AQMP and in the review. iv

5 ethekwini Municipality AQMP Review and Update AQMP Goals and Implementation Plan ACKNOWLEDGEMENTS The following people are acknowledged for their assistance in the compilation of this air quality baseline report for ethekwini Municipality: Stakeholders who attended and contributed at the three public meetings in June 2015 and at the Logical Framework Assessment workshop on 22 July 2015; Bruce Dale, Sam Sewell and Neil Laratt of ethekwini Municipality for their input, review, direction and leadership during the AQMP development; Phumulani Ngema, Lucky Mkhize, Sam Sewlall, Ratasha Pillay, Lizelle Saaiman, Prenthan Chetty, Sanjay Erra and Stembiso Ngidi of ethekwini Municipality for input to the draft AQMP and Implementation Plan. v

6 ethekwini Municipality AQMP Review and Update AQMP Goals and Implementation Plan TABLE OF CONTENTS EXECUTIVE SUMMARY... iii ACKNOWLEDGEMENTS... v TABLE OF CONTENTS... vi LIST OF FIGURES... vii LIST OF TABLES... vii LIST OF ACRONYMS... viii 1 INTRODUCTION AQMP DEVELOPMENT PROCESS BASELINE AIR QUALITY IN ETHEKWINI MUNICIPALITY Emissions Ambient air quality Capacity for air quality management GAP AND PROBLEM ANALYSIS OVERALL OBJECTIVE AND GOALS OF THE AQMP Overall objective Goals IMPLEMENTATION PLAN Objectives and activities Roles and responsibilities Time frames Indicators Cost estimate Implementation tables MONITORING, EVALUATION AND REVIEW Monitoring Evaluation Review REFERENCES vi

7 ethekwini Municipality AQMP Review and Update Baseline Assessment LIST OF FIGURES Figure 1-1: Schematic of the AQMP development process (after DEA, 2012b)... 4 LIST OF TABLES Table 3-1: Total emissions of air pollutants from the different source sectors in ethekwini in tons per annum... 5 Table 3-2: Summary of the baseline capacity at ethekwini for air quality management considering the components capacity... 7 Table 4-1: Gaps, issues and challenges for air quality management in ethekwini Municipality... 8 Table 5-1: Goals supporting the Overall Objective of the 2015 AQMP for ethekwini Table 6-1: Implementation table for Goal 1 - Ambient air quality is compliant with the NAAQS in ethekwini Municipality Table 6-2: Implementation table for Goal 2 - The AQMP is incorporated municipal policy and planning Table 6-3: Implementation table for Goal 3 - Municipal structure facilitates the implementation of the AQMP Table 6-4: Implementation table for Goal 4 - ethekwini Municipality has the necessary incentives to implement the AQMP Table 6-5: Implementation table for Goal 5 - ethekwini Municipality has the necessary incentives to implement the AQMP Table 6-6: Implementation table for Goal 6 - ethekwini Municipality has the necessary systems and tools to implement the AQMP Table 6-7: Implementation table for Goal 7 - AQM in ethekwini Municipality is supported participatory decision making Table 6-8: Implementation table for Goal 7 - Awareness of AQM in ethekwini Municipality is open and transparent vii

8 ethekwini Municipality AQMP Review and Update Baseline Assessment LIST OF ACRONYMS AEL Atmospheric Emission Licence AQM Air Quality Management AQMP Air Quality Management Plan AQO Air Quality Officer DEA Department of Environmental Affairs D: EDT&EA Provincial Department of Economic Development, Tourism and Environmental Affairs DSW Durban Solid Waste DUT Durban University of Technology EMI Environmental Management Inspectors ETA ethekwini Transport Authority EWS ethekwini Water and Sanitation IDP Integrated Development Plan KSIA King Shaka International Airport NAAQS National Ambient Air Quality Standards NEM: AQA National Environmental Management: Air Quality Act NGO Non-governmental Organisation PCRM ethekwini s unit Pollution Control and Risk Management PM Particulate matter PM10 Particulate matter of aerodynamic diameter less than 10 micrometres SCM ethekwini Supply Chain Management SDB South Durban Basin UKZN University of KwaZulu-Natal viii

9 1 INTRODUCTION ethekwini Metropolitan Municipality (ethekwini Municipality) is located on the east coast of South Africa in the Province of KwaZulu-Natal and spans an area of approximately km 2. ethekwini Municipality is one of eight Category A municipalities in South Africa, and one of 11 district municipalities in KwaZulu-Natal. It includes the City of Durban which covers km 2 and home to the Port of Durban, the busiest port in Africa. Durban is a major manufacturing hub and tourism destination. The importance of the environment and air quality is highlighted in Section 24 of the Bill of Rights, which states, amongst others, that everyone has the right to an environment that is not harmful to health or well-being. Air pollution in ethekwini Municipality and its potential impacts on human health have been highlighted for a number of years. This led to the development and implementation of the Multi-Point Plan (MPP) in 2002, which focused largely on the South Durban Basin (DEA, 2007). The associated health study confirmed high levels of exposure to air pollution in the residential areas surrounding the SDB (University of KwaZulu-Natal, 2006). The MPP, amongst others, resulted in a dramatic decrease in the emission of sulphur dioxide (SO2) by industries in the SDB and a concomitant decrease in ambient SO2 concentrations. The Municipal Systems Act (No.32) of 2000 requires that local government structures prepare Integrated Development Plans (IDPs) which guide the transformation of local governments toward facilitation and management of development within their areas of jurisdiction. In terms of Section 15 (2) of the National Environmental Management: Air Quality Act (Act No.39 of 2004) (NEM: AQA), municipalities are mandated to include an Air Quality Management Plan (AQMP) in their IDPs. The AQMP provides definitive objectives, strategies, plans and procedures, for the relevant spheres of government to meet the requirements of the NEM: AQA, with respect to good air quality management planning and reporting. The Pollution Control and Risk Management (PCRM) section of ethekwini Municipality Health Unit developed and implemented an AQMP in 2007 (NILU,2007). In terms of good practice, AQMP review is promoted through the National Framework for Air Quality Management (DEA, 2012a) and the Department of Environmental Affairs (DEA) Manual for Air Quality Management Planning (DEA, 2012b). ethekwini Municipality s Health Unit is therefore embarking on a project to assess, evaluate, review and update their AQMP. umoya-nilu Consulting (Pty) Ltd, a Durban-based air quality management consultancy, was appointed in 2014 to lead this project which spans 18 months and consists of four major components. These are i) facilitation of the public participation process, ii) review of the 2007 AQMP document and its implementation, iii) the description of the current state of air quality in the ethekwini Municipality and the identification of gaps, issues and challenges for air quality management and iv) the development of the AQMP document and the supporting implementation plan. This report addresses point (iv) and defines the overall objective of the 1

10 AQMP, the goals necessary to achieve the overall objective, and presents the supporting implementation plan. Chapter 2 describes the AQMP development process. Chapter 3 provides a summary of the air quality baseline assessment and Chapter 4 emphasises the gaps and problems. The Overall Objective of the AQMP is presented in Chapter 5 with the nine specific goals necessary to achieve the Overall Objective. The Implementation Plan is detailed in Chapter 6. Chapter 7 presents the methodology for on-going monitoring of progress with implementation of the AQMP, evaluation of the efficacy of the interventions, and the AQMP review process. 2 AQMP DEVELOPMENT PROCESS An AQMP is a strategic document with a vision and a goal that endeavour to ensure that air quality meets the requirements of Section 24 of the National Environmental Management Act (ethekwini Municipality) and Section 24 of the Bill of Rights, i.e. air quality that is not harmful to health and wellbeing. This implies that governance and management efforts are directed towards maintaining or improving air quality so that it complies with health based national ambient air quality standards (DEA, 2009 and 2012c). An AQMP must seek to give effect to Chapter 3 of the NEM: AQA. It should aim to: improve (or maintain) air quality; identify and reduce the negative impact of air pollution on human health and the environment; address the effects of emissions from fossil fuel use in residential areas; address the effects of emissions from industrial sources; address the effects of emissions from other sources; implement obligations in respect of international agreements; give effect to best practice in air quality management; and describe how implementation will be effected and measured AQMP development is a dynamic process that is enhanced by active engagement with a wide range of stakeholders. The baseline assessment describes the current state of air quality in an area and the trends, identifying gaps and issues and recommendations to improve air quality and air quality service delivery. The baseline assessment is followed by the development of the implementation plan that involves setting a vision and overall objective, supported by short and long-term goals and objectives for the implementation of defined management measures. The six stages are described here: Stage 1 includes the establishment of a stakeholder database and an assessment of baseline air quality. Stakeholders include amongst others the three spheres of government, parastatals, industry, planners, business, communities and non governmental organisations (NGOs). The establishment of the air quality baseline in the ethekwini Municipality includes 2

11 an assessment of climate and meteorological information, ambient monitoring data, emission inventory data, the existing air quality management capacity and practices in the ethekwini Municipality. Areas where ambient air quality standards are exceeded or may be exceeded are identified as potential areas of concern. The draft baseline assessment was presented to stakeholders at meetings in Tongaat, the old Durban International Airport and in Pinetown, followed by a comment period. The baseline assessment was revised accordingly. Stage 2 is the gap and issue analysis which is based on findings of the baseline assessment and is informed by legislative requirements and stakeholder engagement. The draft gaps and issues were included in the baseline assessment report and presented to stakeholders at meetings in Tongaat, the old Durban International Airport and in Pinetown, followed by a comment period. The gaps and issues were revised in the final baseline assessment report. Stage 3 is the initial phase of the development of the implementation plan and sets the strategic intent through establishing an overall objective and goals. A Logical Framework Assessment (LFA) methodology was used at a workshop involving a wide stakeholder to scope the context of the overall objective of the AQMP, and to develop the supporting goals. Stage 4 considers the develoment of interventions that address each gap and issue that are SMART (Specific, Measurable, Achievable, Relevant, & Time based). Initial input was provided by stakeholders on desired interventions at the LFA workshop. Specific interventions were developed with stakeholders where implementation depends on their direct involvement. Stage 5 focuses on the development of an implementation plan where accountability is assigned and timeframes for implementation are established. The implementation plan defines what needs to be done, how it should be done, who is responsible and when it will be done for each intervention. Stage 6 addresses monitoring and reporting progress with implementaion of the AQMP and evaluating the success of the interventions. The process to review and update the ethekwini AQMP follows the process defined in the Manual for Air Quality Management Planning (DEA, 2012b) and is outlined in the National Framework illustrated in Figure 2-1 (DEA, 2012a). 3

12 Figure 2-1: Schematic of the AQMP development process (after DEA, 2012b) 3 BASELINE AIR QUALITY IN ETHEKWINI MUNICIPALITY The air quality baseline assessment for ethekwini Municipality emissions, ambient concentrations of pollutants and the capacity to manage air quality and is detailed in umoya- NILU (2015). A summary is provided in the following sections. 3.1 Emissions Emissions of priority pollutants in ethekwini result from a number of different source types. These include industrial facilities that are regulated in terms of their Atmospheric Emission Licenses, i.e. Listed Activities. They also include industrial facilities that operate mediumsized boilers, which are regulated as Controlled Emitters. Smaller facilities that operate Fuel Burning Devices of less than 10 MW heat input are regulated in terms of municipal by-laws. Transportation, which includes motor vehicles and activities in the Port of Durban and the King Shaka International Airport (KSIA) is an important source of emissions. Residential fuel burning is also a source of air pollutants as many homes do not have access to electricity in ethekwini Municipality. Here wood, coal, paraffin and gas are used for cooking, lighting and heating purposes. In the north, sugarcane burning is a seasonal source of air pollutants. There are a number of quarries in ethekwini, which are a source of dust. A comprehensive emission inventory was developed as part of the baseline assessment, using 2012 as the reference year. The greatest emission from priority pollutants in ethekwini 4

13 Municipality is CO, totalling tons per annum, with 97% of the emission attributed to transportation, dominated by motor vehicle emissions (Table 2-1). The total NOX emission is tons per annum, resulting primarily from transportation, and mostly heavy duty vehicles with a notable contribution from shipping and Listed Activities. The total SO2 emission is tons per annum with 73% of the emission attributed to industrial sources (Listed Activities and Controlled Emitters) with a significant contribution from transportation, notably shipping. Table 3-1: Total emissions of air pollutants from the different source sectors in ethekwini in tons per annum Sectors SO2 NOx CO PM10 VOC Benzene Listed Activities Controlled Emitters Residential fuels Motor vehicles Port of Durban King Shaka IA Biomass burning Mining Total : Benzene from storage tanks included in Listed Activities 2: Total particulates By comparison with other pollutants, the total emission of PM10 is relatively low at tons per annum. Collectively industrial sources account for 53% of the total PM10 emissions with motor vehicles accounting for 41% of the total emissions. The emission of total VOCs is tons per annum with 75% from heavy duty vehicles and 16% from Listed Activities. Benzene constitutes 3.3% of the total VOC emission. Benzene emissions account for 108 tons per annum with Listed Activities accounting for 63% of the total emission, followed by light motor vehicles accounting for about 30% of the emission. 3.2 Ambient air quality ethekwini Municipality started ambient air quality monitoring in the 1990 s using smoke and SO2 bubblers. This monitoring was augmented in 2005 with 14 fully automated ambient air quality monitoring stations. In 2013 the network expanded with a further four ambient monitoring stations, while the smoke and SO2 bubbler stations continued to operate. The municipality has also done a number of monitoring campaigns. A good record therefore exists for the criteria pollutants, including SO2, NO2, CO, O3, PM10 and benzene. ethekwini experiences a high frequency of moderate to strong winds, being located on the coast. The influence of the warm Indian Ocean impedes the development of strong temperature inversions and air pollutants generally disperse well along the coast. Persistent inversions can develop inland, especially in valleys in the winter, when pollutants can 5

14 accumulate. Air quality in ethekwini is therefore relatively good in general, complying with NAAQS as a result of the meteorology and emission reduction measures by major industrial facilities. However, industry and motor vehicle emissions do result in exceedances of the NAAQS for PM10, NO2 and benzene. Most air quality complaints concern chemical odour south of the city. Ambient air quality is informed by measured and predicted data. Monitoring data, where available in the ethekwini Municipality is presented. Using the emission inventory developed for the AQMP, dispersion modelling outputs present a complementary picture of air quality in the region. The CALPUFF dispersion model was used to estimate ambient concentrations of SO2, NO2 and particulates resulting from industrial emissions, the Port of Durban and the King Shaka International Airport. Key points regarding ambient air quality are: a) A dramatic decrease in ambient SO2 in the South Industrial Basin in 2006 following the implementation of emission reduction measures by a number of large industrial facilities; b) There is general compliance with the National Ambient Air Quality Standards (NAAQS) for SO2 throughout ethekwini since 2006, except in the Umkomaas area where exceedances occur; c) Ambient SO2 concentrations from industrial facilities are predicted to exceed the NAAQS near the Port of Durban, in Clairwood, Jacobs, Wentworth, Merewent and at Umbogintwini; d) There is general compliance with the NAAQS for NO2 throughout ethekwini except in high traffic zones where exceedances of the limit value occur; e) The background PM10 concentration in ethekwini is about 16 μg/m 3 ; f) There is general compliance with the NAAQS for PM10 throughout ethekwini except in high traffic zones where exceedances occur. The number of exceedances has however decreased following the phase-in of clean diesel; g) Annual ambient concentrations of benzene are relatively high in high traffic zones and in the vicinity of Umlaas Canal which is impacted on by industrial emissions and the Southern Treatment Works; h) The background O3 concentrations in ethekwini are relatively high and exceedances of the NAAQS have occurred; i) Ambient CO concentrations in ethekwini are low relative to the NAAQS; j) Ambient lead concentrations are very low throughout ethekwini relative to the NAAQS; k) The combination of a number of sources of dust in the Coedmore Road area result in nuisance and quality of life issues; l) Most air pollution related complaints received by ethekwini Municipality relate to emissions and to chemical smell; and m) Most complaints received are in the South 3, South 4 and North 1 sub-districts. 6

15 3.3 Capacity for air quality management ethekwini Municipality has excelled in fulfilling the requirements of the NEM: AQA, at times under challenging conditions and without the appropriate institutional structures. However, the management of air quality in the ethekwini Municipality continues to increase in complexity with growth and development in the municipality. The improvement of technical skills and interdisciplinary studies should be driven by an overarching strategy that is robust and holistic. For the ethekwini Municipality to evolve into a multi-faceted, technically strong and diverse group of Air Quality Management professionals there are gaps that need to be addressed and challenges which need to be overcome, these are highlighted in Table 2-2. Table 3-2: Summary of the baseline capacity at ethekwini for air quality management considering the components capacity Assessment Function/responsibility Structure The Air Quality Officer was designated in 2011 The Air Quality Management function is in the Health Department Reporting and communication lines are defined The organogram is outdated Systems A defined approach for Air Quality Management is limited Performance indicators for Air Quality Management exist The emission inventory has been updated but gaps exist Ambient air quality monitoring is comprehensive, but old Data are managed via an air quality data management system Atmospheric emission licensing function is established and in operation Controlled Emitters are regulated in terms of Schedule Trade Permits Air quality by-laws are in draft Skills Suitability of staff profiles is mostly in monitoring and related activities Departmental learning processes are available Skill sharing opportunities are limited Technical skills development are limited Management skills development is limited Incentives A conducive culture and work environment exists Opportunities for career growth are limited Established partnerships are limited There is no external funding to support the function Strategy AQMP review is in progress AQMP implementation is limited to mandated function Vision, mission internalisation is limited Flexibility of strategy is limited Interrelationships Internal working partnerships exist External working partnerships exist Working relationship with other organisations exists 7

16 4 GAP AND PROBLEM ANALYSIS The baseline assessment showed that the air quality management requirements of the NEM: AQA are being met in ethekwini. There is a dedicated section for air quality management in the ethekwini Municipality. An AQO has been designated and staff are competent and confident in their abilities to fulfil the AQM function. An Air Quality Officer (AQO) has been designated, the municipality has a dedicated air quality management section and the AEL function is being performed. In addition, the ambient air quality monitoring network is being upgraded and expanded to other parts of the municipality besides the South Industrial Basin. Ambient air quality data is processed and archived, and is critical to directing AQM activities and ensuring that impacts on human and environmental health and well-being are reduced. The AEL function is performed, and routine reporting occurs, ensuring compliance of Listed Activities. The baseline assessment also highlighted gaps, issues and challenges in air quality management in ethekwini Municipality that inhibit fulfilment of the mandate and should be addressed in the AQMP. These are listed in Table 4-1 for the different aspects of air quality. Table 4-1: Gaps, issues and challenges for air quality management in ethekwini Municipality Air quality aspect Capacity Gaps, issues and challenges The structure for the air quality function is not ideal: It is based on a dated organogram that does not account for mandated functional requirement of the NEM: AQA; Vacancies exist on the organogram, but job descriptions for the posts do not account for mandated functional requirement of the NEM: AQA; Mandated functional requirement of the NEM: AQA has increased the work load without staff numbers increasing; There is a risk of appointing staff with inappropriate skills if the current organogram and job descriptions are used as the benchmark. Systems for AQM in ethekwini are lacking: Emission inventory is incomplete; Ambient monitoring equipment is old and there are procedural shortcomings; The is no dispersion modelling capability; The AEL function is not recognised in the organogram. Skills on incumbent staff for air quality management are limited: Skills exist mostly in ambient monitoring and data management, AELs and reporting; There are limited opportunities for skills sharing as well as technical and management training. Incentives for air quality management are driven by resources to perform the function: The function has been expanded by the mandated requirements of the NEM: AQA; 8

17 Air quality aspect Human health Emissions Gaps, issues and challenges Financial resources for the function are currently limited to the available municipal budget; Available financial resources inhibit function. The health study in ethekwini Municipality showed persistent asthma in children was higher in the south than in the north. Other than in the South Durban Basin the health status is less well understood. The health status in ethekwini Municipality has not been updated since 2006, prior to the marked SO2 reductions. The emissions for 2012 developed for the baseline assessment includes information for 84 industrial facilities that hold AELs: AELs have not been issued to all facilities with Listed Activities so not all sources are included; Emission testing has not been done at all facilities and emissions have not been estimated; Emissions of SO2, NOX, PM10 and VOC from Listed Activities are significant; Most emissions result from the pulp and paper sector, crude oil refining, the metallurgical sector and sugar milling and refining. The Controlled Emitter database: Information is available in the database for 13 facilities operating 33 boilers; Not all Controlled Emitters are included; Most emissions result from coal and (heavy fuel oil) HFO combustion. Motor vehicles: Heavy duty vehicles are significant sources of PM10, CO and NOX in ethekwini; Light motor vehicles are a source of benzene emissions; Emissions from motor vehicles are concentrated in Durban and Pinetown, with lesser emissions elsewhere; Motor vehicle emissions are estimated using a top-down approach for 9 areas in ethekwini, providing a reasonable coarse estimation. The Port of Durban: Emission is based on 2009 data using the Intergovernmental Panel on Climate Change (IPCC) Tier 1 methodology; Port of Durban is a major source of SO2, NOX and VOCs; Information from a number of sources in the chemical cluster was omitted from the inventory. Airports: KSIA is not a major source of emission in ethekwini; Emissions were not estimated for small airports. Residential fuel burning: Emissions of NOX and PM10 from residential fuel burning are relatively small in ethekwini. Biomass burning: Emissions of CO and PM from sugarcane burning are seasonal and relatively small in ethekwini; 9

18 Air quality aspect Ambient monitoring Ambient modelling Gaps, issues and challenges Sugarcane burning is common practice and occurs in close proximity to residential and commercial properties, resulting in nuisance impacts. Waste management: Emissions of air pollutants from Wastewater Treatment Works (WWTW) and landfills are relatively small; The impacts are mostly nuisance related and are localised. Mining: Emissions of particulates from mining are relatively small; The impacts are mostly nuisance related and are localised. A number of technical shortcomings were identified during a supporting study, including: The monitoring network plan is outdated; It is not necessary to perform meteorological monitoring at so many locations; There is no formal QA/QC system in place that documents operational procedures and the basis for the establishment of the monitoring network; The municipality does utilise a SANAS accredited laboratory, but the calibrations are only performed annually; External audits performed as a means of independently verifying ethekwini Municipality monitoring activities. Air quality modelling is not used to inform decisions in ethekwini Municipality. ethekwini Municipality does not have a modelling capability. 5 OVERALL OBJECTIVE AND GOALS OF THE AQMP 5.1 Overall objective The overall objective of the 2015 AQMP recognises that: i. AQM is a municipal responsibility and function ii. Effective AQM is underpinned by cooperative governance and stakeholder involvement. iii. iv. Ambient air quality is poor in some parts of the ethekwini Municipality and protection of air quality implies management to improve quality of life in these areas while maintaining the status quo in others. ethekwini Municipality is a key manufacturing hub that will continue to develop. v. AQM in the ethekwini Municipality is strategic with regards to future development. vi. There are co-benefits between AQM and Climate Change imperatives. 10

19 The Overall Objective for the 2015 AQMP therefore states that: ethekwini Municipality manages ambient air quality to protect human and environmental health within a framework of sustainable development The following definitions apply: i. ethekwini Municipality means the Health Unit s Pollution Control and Risk Management (PCRM) Unit and supporting structures. ii. iii. iv. Manages means carrying out all functions dictated by the National Framework for AQM (DEA, 2012a), the NEM: AQA and municipal air quality bylaws through cooperative governance and active stakeholder engagement. Ambient air excludes air regulated by the Occupational Health and Safety Act (Act 85:1993). Protection of human and environmental health refers to Section 24 (b) of the Constitution (Act No. 108 of1998) that aims to enhance the quality of ambient air to secure an environment that is not harmful to the health and well-being of people. v. Sustainable development promotes justifiable economic and social development through the application of reasonable measures to reduce environmental degradation and pollution. 5.2 Goals The Overall Objective will be achieved through the attainment of eight associated goals that address compliance with the NAAQS associated with current and future activities, the six aspects of capacity for air quality management (structure, systems, skills, incentives, systems and tools, and inter-relationships), and air quality awareness. The goals are defined in Table 5-1 with supporting context. 11

20 Table 5-1: Goals supporting the Overall Objective of the 2015 AQMP for ethekwini Goal 1: Ambient air quality is compliant with the NAAQS in ethekwini Municipality Goal 1 focuses on appropriate interventions to achieve compliance with the NAAQS in areas where exceedances occur and to maintain the air quality status quo elsewhere, considering the principles of sustainable development. Goal 1 also aims to answer questions on the impact of air pollution in ethekwini to inform decision making regarding current activities and proposed development projects Goal 2: The AQMP is incorporated municipal policy and planning Goal 2 recognises that the AQMP needs to be integrated into related municipal policy and in planning mechanisms such as the Integrated Development Plan to realise buy-in, support and implementation success Goal 3: Municipal structure facilitates the implementation of the AQMP Goal 3 recognises that the municipal structure and the structure of the PCRM unit, as well as roles, responsibilities and lines of communication need to be clearly defined for successful implementation of the AQMP Goal 4: ethekwini Municipality has the necessary skills to implement the AQMP Goal 4 refers to the skills needed by incumbent staff to perform their mandated functions and addresses career development through training and other mechanisms Goal 5: ethekwini Municipality has the necessary incentives to implement the AQMP Goal 5 concerns securing adequate funds for the function and incentivising staff through motivational policies at an organisational and individual level to achieve the overall objective of the AQMP Goal 6: ethekwini Municipality has the necessary systems and tools to implement the AQMP Goal 6 aims to enhance existing systems and tools and to develop others where necessary to achieve the overall objective of the AQMP. Included are emission inventories, ambient monitoring, dispersion modelling, information management, compliance and enforcement and complaints management Goal 7: AQM in ethekwini Municipality is supported participatory decision making Goal 7 acknowledges that AQM is an interdisciplinary field and requires participatory decision making, which is dependent on the relationships within the municipality, other spheres of government and external stakeholders Goal 8: Awareness of AQM in ethekwini Municipality is open and transparent Goal 8 aims to update stakeholders on progress with AQMP implementation, to improve communication amongst stakeholders, and improve general understanding of air quality in the municipality 12

21 The association between the AQMP goals is important to note. For example, for the AQMP to be incorporated municipal policy and planning (Goal 2), it is necessary that the Municipal structure facilitates the implementation of the AQMP (Goal 3), and that awareness of AQM in ethekwini Municipality is open and transparent (Goal 8). The nature of the association is explicit in the next section, in the AQMP s Implementation Plan. 6 IMPLEMENTATION PLAN The realisation of the Overall Objective of ethekwini s AQMP over its 5-year lifespan is guided by the Implementation Plan. The Implementation Plan addresses each Goal by defining outcomes-based Objectives and the Activities necessary to achieve the objectives. The Implementation Plan is structured to provide strategic input to the annual business planning of executing departments in ethekwini Municipality and of other stakeholders, which in turn, informs the respective operational planning. The so-called SMART principles are applied, i.e. the Implementation Plan should be: Specific: To address specific air quality management issues; Measurable: Provide indicators to monitor progress with implementation; Assignable: Specify responsibilities for executing the plan; Realistic: Address issues that can realistically be achieved, given available resources; Time-related: Specify when result(s) can be achieved. The different components of the Implementation Plan are described in the following sections. 6.1 Objectives and activities For the implementation of the AQMP, each goal is addressed through SMART out-comes based objectives which focus on specific aspects for each goal. In turn, the objectives are addressed through the definition of the sequential activities that need to be undertaken to realise the objective. The objectives and related activities for each goal in the Implementation Plan are presented in Tables 6-1 to Roles and responsibilities Air quality management is the mandated function of the PCRM Unit. Air quality management is influenced by a range of stakeholders. The implementation of the AQMP therefore depends on PCRM and the participation of other role players. Responsibilities for executing the work required of each activity are defined in Tables 6-2 to 6-9. Note that municipal posts referred to in the Implementation Plan may not currently exist. They are posts required in a revised structure for effective implementation of the AQMP. The role players referred in Tables 6-2 to 6-9 are: 13

22 PCRM Head AQO PCRM Network Manager AEL Team Leader Team Leader (TL) PCRM Emission TL PCRM Modelling TL PCRM Complaints Management Permitting Officer Health IT DSW EWS ETA HR UKZN ethekwini Legal Department Industry representatives Ultimately responsible for the implementation the AQMP, reports to Council and Senior Management Responsible for managing PCRM resources and air quality management in ethekwini Responsible for ambient monitoring and data Responsible for the AEL function Responsible for the emission inventory development and maintenance function Responsible for the dispersion modelling function Responsible for the complaints management and reporting PCRM official responsible for permitting Health Depts. Unit for Information Technology Management Durban Solid Waste ethekwini Department of Water and Sanitation ethekwini Transport Authority ethekwini unit for Human Resource Management University of KwaZulu-Natal s Nelson Mandela Medical School Responsible for by-law drafting and legal support in enforcement action Official mandated to act on behalf of an industrial facility and agree on emission control and reduction initiatives 6.3 Time frames Time frames are defined for the implementation of the AQMP over its 5-year term. They provide input to the annual business planning, which in turn, informs operational planning. The timeframes provide for a phased implementation of the AQMP, accounting for priority activities and those with longer lead times. The defined time frames are: Daily, monthly or annually Refers to the frequency of task execution Year 1, 2, 3, 4, or 5 Considers resource requirements of activities, the available or incumbent resources, and provides input to annual business, CAPEX and OPEX planning The time required to undertake each activity is defined in Tables 6-2 to Indicators Indicators are designed to be easily interpreted and focus on outcomes. Indicators offer a means of measuring progress with implementation and reporting on progress. The indicators for each activity are defined in Tables 6-2 to

23 6.5 Cost estimate Indicative cost is also provided for each activity in the Implementation Plan, to guide annual planning for operational and capital budgets. Three cost bins are defined in Table 6-1. The estimated cost per activity is shown in Tables 6-2 to 6-9. Table 6-1: Cost bins for the ethekwini AQMP Cost bin 1: No cost (included in normal operational budgets) Cost bin 2: Legislative requirement (No additional cost because of the AQMP, but part of functions as stipulated by law and funded from operational budget) Cost bin 3: Additional cost (Estimated cost) 6.6 Implementation tables The Implementation Plan for the AQMP is detailed in the Implementation Tables for each Goal (Tables 6-2 to 6-9). These provide objectives, activities, responsibility, timeframes, and indicator and the estimated cost. 15

24 Table 6-2: Implementation table for Goal 1 - Ambient air quality is compliant with the NAAQS in ethekwini Municipality Objective Activity Responsibility Timeframe Indicator Estimated 1.1 Ambient concentrations of air pollutants comply with NAAQS in the Umkomaas area 1.2 Ambient benzene concentrations in Jacobs comply with the NAAQS 1.3 Ambient benzene concentrations comply with the NAAQS in the refinery corridor Identify a site and deploy the mobile monitoring unit to improve the understanding of ambient concentrations of S0 2 and other pollutants Operate the mobile unit for 12 months at the selected site Conduct dispersion modelling to improve the understanding of the ambient non-compliance Evaluate possible interventions using dispersion modelling that will reduce ambient concentrations Amend AELs to include the identified interventions Monitor implementation of the interventions through AEL compliance monitoring Verify that the latest emission reduction measures at industries in Jacobs result in compliance with the NAAQS Monitor implementation of the emission reduction measures through AEL compliance monitoring Augment existing information on benzene emissions from the Petrochemical Industry in the emission inventory Estimate emissions of benzene from the Southern Treatment Works Use the dispersion model to apportion ambient benzene concentrations from contributing sources PCRM Network Manager PCRM Network Manager AQO, PCRM Dispersion TL AQO, PCRM Dispersion TL, Industry representatives AQO, AEL TL, Industry representatives AQO, AEL TL AQO, AEL TL, Industry representative Year 1 Year 1 Year 1 Year 1 Site identified and station deployed 12 monthly air quality reports Dispersion modelling report Peer reviewed intervention report Additional cost < R50k Calibration and siting Additional cost approximately R250k Running budget Additional cost < R100k Peer review Year 1 Amended AEL Legislative requirement As dictated by the AEL Compliance monitoring reports Legislative requirement Year 1 Verification reports Legislative requirement AQO, AEL TL Year 1 to 5 Compliance monitoring reports PCRM Emission TL, Industry representatives PCRM Emission TL, EWT AQO, Industry representatives, PCRM Modelling TL Year 1 Year 2 Year 2 Emission inventory complete Emission inventory complete Source apportionment report Legislative requirement budget budget budget 16

25 Objective Activity Responsibility Timeframe Indicator Estimated 1.4 Dustfall in the Coedmore area complies with acceptable dustfall limits for residential areas Identify interventions to reduce benzene emissions from the Petrochemical Industry Identify interventions to reduce benzene emissions from the Southern Treatment Works Enforce mechanisms to implement interventions for the Petrochemical Industry through the AEL Monitor implementation of those interventions for the petrochemical industry through AEL compliance monitoring Recommend implementation of findings of intervention report at Southern Treatment Works Monitor progress with implementation of interventions at Southern Treatment Works Consolidate and review all available ambient dust information from contributing sources Enforce the implementation of the dust management plans that is in line with BAT at the Listed Activities Verify the progress with implementation of the dust management plans at Listed Activities Assess the efficacy of the of the dust management plan for listed Activities Include the dust management plans at facilities with Schedule Trade Permits AQO, Industry representatives, PCRM Emission TL, DCMR cooperation Year 2 Peer reviewed intervention report AQO, EWS Year 2 Peer reviewed intervention report AQO, AEL TL Leader, Industry representatives AQO, Permitting officer budget budget Year 2 Amended AEL Legislative requirement Year 1 to 5 Compliance monitoring reports Legislative requirement AQO, EWS Year 3 Action of intervention report recommendations budget AQO, EWS Year 3 to 5 Progress report budget PCRM, Network Manager AQO, Permitting Officer, DEA (for BAT) AQO, Licencing officer, Industry representatives AQO, Licencing officer, Industry representatives Year 2 Review report cost Year 1 to Year 5 According to AEL conditions Compliance monitoring reports Compliance monitoring reports Legislative requirement Legislative requirement Year 1 to Year 5 Audit Report Legislative requirement Permitting Officer Year 1 Amended Schedule Trade Permit Legislative requirement 17

26 Objective Activity Responsibility Timeframe Indicator Estimated 1.5 Impacts of sugarcane burning on ambient air quality in ethekwini are reduced 1.6 Impacts of odour are reduced in ethekwini Enforce the implementation of the dust management plan that is in line with BAT through the Schedule Trade Permits Verify the progress with implementation of the dust management plans at facilities with Schedule Trade Permits Establish a working committee to explore opportunities of rerouting trucks from the Coedmore complex directly to the N Amend the draft air quality by-laws to include the regulation of sugar cane burning Work with growers to ensure that complaints regarding cane burning are submitted to PCRM Update the 2008 odour management strategy Implement the revised strategy in PCRM using lessons learnt from the DCRM cooperation Work with stakeholders in the area to identify sustainable interventions Enforce the agreed interventions through the appropriate legislation Monitor implementation of those interventions through compliance monitoring. Permitting Officer, DEA (for BAT) Year 1 to Year 5 Compliance monitoring reports Legislative requirement Permitting Officer Year 1 to Year 5 Audit Report Legislative requirement Health, PCRM, ETA, Industry representatives, SANRAL, Industrial Forum, Affected Communities AQO, ethekwini Legal Dept., SASRI, Cane Growers AQO, PCRM Complaints Management, Cane Growers PCRM Head, AQO, PCRM Network Manager, Permitting Officer AQO, PCRM Network Manager, Permitting officer AQO, Permitting Officer, Facility official AQO, Permitting Officer AQO, Permitting Officer Year 2 Year 1 Year 1 to Year 5 Year 2 Year 2 to Year 5 Year 2 Working committee established Burning code of practice amended Complaints registers submitted Revised odour management strategy Inventory of odour sources Revised AELs include interventions Additional cost < R50k Running Legislative requirement cost cost cost Legislative requirement Year 2 to Year 5 Audit report Legislative requirement Year 2 to Year 5 Audit Report Legislative requirement 18